LIFELONG LEARNING: CONCEPTS, ISSUES AND ACTIONS Lifelong Learning: Concepts, Issues and Actions Lifelong Learning: Concepts, Issues and Actions RECENT YEARS HAVE WITNESSED A GROWING INTEREST IN LIFE-LONG LEARNING (LLL) AS AN INDISPENSABLE ELEMENT OF POLICY RESPONSES TO THE FUTURE OF WORK. THIS BRIEFING NOTE PROVIDES A SHORT INTRODUCTION TO LLL, FOCUSSING ON THE CONCEPT ITSELF, IMPLEMENTATION CHALLENGES AND RELATED POLICY ACTIONS FOR CONSTITUENTS AND THE ILO. Lifelong Learning: Concepts, Issues and Actions Lifelong Learning: Concepts, Issues and Actions 1 INTRODUCTION The recent release of the report of the ILO Global Commission on the Future of Work has renewed interest in life-long learning and how the work of the ILO is supporting implementation. The ILO’s normative work on skills development has, since the early 1970s, reflected life-long learning (LLL) concepts from the time when they first entered international policy debates. However, in the context of ongoing change to education and training systems and the labour markets and societies they seek to serve, it is timely to reconsider the concept of LLL, examine the key issues that shape implementation and to outline priority current and possible future actions for the ILO. As such, this position paper seeks to guide ILO constituents in their discussions on the following strategic questions: WHAT DOES LLL MEAN IN THE CONTEXT OF DISCUSSIONS ON THE FUTURE OF WORK AND THE RECOMMENDATIONS OF THE GLOBAL COMMISSION? Lifelong Learning: Concepts, Issues and Actions WHAT ARE THE KEY ISSUES AFFECTING THE IMPLEMENTATION OF LLL? WHAT KEY ISSUES AND ACTIONS SHOULD THE ILO TAKE WITH REGARDS TO LLL? Lifelong Learning: Concepts, Issues and Actions 2 BACKGROUND The origins of lifelong learning (LLL) can be traced back to the early 20th century when adult education was recognised as ‘a permanent national necessity, an inseparable aspect of citizenship (that) should be both universal and lifelong’ (MOR 1919). From the 1920s until the 1960s, adult education thus remained the central concept related to learning after school and university. When this was displaced in the 1970s, it was with terms such as ‘continuing education’ rather than the more expansive language of ‘lifelong learning’ that only began to assume a central role in policy debate in the 1990s after the release of the influential Delors report (UNESCO 1996). The concept of LLL recognised that whilst the value of initial training was not to be discounted, the frontloading of skills through education and training for a single lifetime qualification was no longer sufficient, and that education and training systems of the future needed to be flexible and prepare individuals to learn continuously over their life (ILO, 2018). The concept of LLL was in part a response to concerns surrounding economic competitiveness, globalization, unemployment and the implications they held for human capital development. As noted by the ILO, education, training and lifelong learning are fundamental and should form an integral part of comprehensive economic, fiscal, social and labour market policies and programmes that are important for sustainable economic growth, employment creation and social development (ILO 2004). Debates at this time called for the introduction of ‘new and different concepts based on learning rather than education, on the integration of different learning environments and on the promotion of Lifelong Learning: Concepts, Issues and Actions individual pathways between them’ (UNESCO, 1999, p. 1). Whilst the socio-economic context of skills development has continued to evolve since the concept of LLL was developed, the imperative for LLL has been recently reinforced by emerging debates surrounding the accelerating pace of technological change and the future of work and employment. Consequently, as labour markets and the demand for skills evolves, a comprehensive people-centred and rights-based approach to LLL is seen as a key strategy to help workers adjust to change, prevent the high social costs and maximise the positive effects of the complex and disruptive changes that lie ahead (ILO 2018). The importance of LLL has also been further strengthened by its inclusion as a central feature of the 2030 Agenda for Sustainable Development, where in Goal 4, UN member states have committed to ensure inclusive and equitable quality Lifelong Learning: Concepts, Issues and Actions 3 education and promote lifelong learning opportunities for all (UN 2015). In this context at least, the concept of lifelong learning has been reaffirmed as a guiding principle and operational framework for education systems and policies (UNESCO 2018). From the time it emerged in policy debates, LLL was recognised by the ILO as a key principle to shape the development of education and training systems and it was incorporated in a number of normative and policy instruments. These include the Human Resources Development Recommendation, 2004 (No.195) (ILO 2004), the Paid Educational Leave Convention, 1974 (No. 140) (ILO 1974), and the Conclusions on Skills for Improved Productivity, Employment Growth and Development (ILO 2008). Whilst not explicitly addressing all elements of LLL, these instruments do provide a solid normative and policy framework for action on LLL by ILO constituents. For example, the instruments note that realization of lifelong learning should be based on the explicit commitments by government through investing and creating the conditions to enhance education and training at all levels; by enterprises through training their employees, and by individuals through developing their competencies and careers (R. 195, Article 4.b) (ILO 2004). Examples of other key policy principles on LLL drawn from these instruments are highlighted in Box 1. These instruments provide important guidance and policy principles for member States and the International Labour Office in the area of education, training and LLL. Lifelong Learning: Concepts, Issues and Actions BUT WHAT EXACTLY IS LLL, WHAT ARE THE KEY ELEMENTS OF A LLL SYSTEM AND HOW MIGHT THE OFFICE EFFECTIVELY ASSIST MEMBER STATES TO CONVERT THE RHETORIC OF LLL INTO ACTION? Lifelong Learning: Concepts, Issues and Actions 4 BOX 1: KEY POLICY PRINCIPLES ON LLL • “members should formulate, apply and review national human resources development, education, training and lifelong learning policies which are consistent with economic, fiscal and social policies” (ILO 2004, p. 2) • that the social partners have a particularly important responsibility in “supporting and facilitating lifelong learning including through collective bargaining agreements” (ILO 2008, p. 14). • that “as part of the lifelong learning agenda”, governments should provide “employment placement services, guidance and appropriate active labour market measures such as training programmes targeting older workers and, where possible, supported by legislation to counter age discrimination and facilitate workforce participation (ILO 2008, p. 9); • “that members should develop a national qualifications framework to facilitate lifelong learning” (ILO 2004, p. 3). • “that members should promote equal opportunities for women and men in education, training and lifelong learning” (ILO 2004, p. 3). Lifelong Learning: Concepts, Issues and Actions • “that members should recognise employees’ rights to free time for training through paid study leave” (ILO 1974, p. 1); and • that a holistic approach includes “development of core skills – including literacy, numeracy, communication skills, teamwork problem- solving and other relevant skills and learning ability, as well as awareness of workers’ rights and an understanding of entrepreneurship, as the building blocks for lifelong learning and capability to adapt to change” (ILO 2008, p. 2). Source: ILO (1974), ILO (2004), ILO (2008) Lifelong Learning: Concepts, Issues and Actions 5 KEY CONCEPTS AND ISSUES WHAT IS LIFELONG LEARNING? Interpretations of lifelong learning vary widely around the world and it can be argued that there is no real agreement on what exactly lifelong learning means (UNESCO 2016a). In fact for some, LLL remains a contested concept. According to Bengtsson, the concept of LLL remains vague and without a coherent implementation strategy (Bengtsson, 2013), and as various authors have stated, it is a ‘chameleon like’ and ‘slippery’ term (Johnston 2000) which allows it to be adapted according to the context and purpose (Lovren & Popovic, 2018). Diverse understandings about learning have also fuelled ongoing disagreements about the role and significance of lifelong learning. Some interpretations limit the scope of learning to formal education and training systems whilst others regard lifelong learning as covering all kinds of informal learning, differing valuations that underpin ongoing disputes about lifelong learning (Hager, 2011). LLL has also been labelled by some as a ‘Nordic’ and ‘Western’ concept imposed on the Global South which has a stronger tradition of ‘adult education’ (Torres 2004). Other critiques see LLL as part of an agenda to enable the state to withdraw from the education process, and the field of adult education in particular, shifting responsibility to individuals (Lovren & Popovic, 2018). Although the initial proposals on LLL were meant for all countries, subsequent development of the concept has occurred mainly in the context of OECD countries, and questions might well be raised about its relevance for less developed countries (Hasan, 2012). Despite these tensions, in broad terms,